The Development of Public Institutions: Reconsidering the Role of Leadership

Abstract

Some public organizations take on the qualities and characteristics of an institution. They become vessels for societal ambition, combining reliable performance with high levels of legitimacy. The functioning and effects of these highly institutionalized organizations are well researched. How these public institutions come about remains somewhat of a mystery, however. Empirical accounts of public institutions consistently identify leadership as a crucial explanatory variable. Conventional wisdom in the field of public administration research, on the other hand, suggests it is impossible for leaders to single-handedly create an organization that effectively serves multiple, complex, and mutually exclusive goals in a volatile environment that is characterized by impatient politicians, scrutinizing media, critical citizens, and scarce resources. This article revisits the relation between leadership and the institutionalization of public organizations. Building on theoretical work and case studies of public institutions, it formulates an analytical framework for studying the role of leadership in institutionalization processes.